DATE: February 25, 2019
SUBJECT:
Title
PRESENTATION AND DIRECTION TO STAFF ON THE PORT MASTER PLAN UPDATE:
A) FOLLOW-UP ITEMS FROM THE FEBRUARY 12, 2019 WORKSHOP
B) PLANNING COMMITMENTS AND PREVIOUS STUDIES FOR NORTH EMBARCADERO SUB-DISTRICT
C) DRAFT POLICY CONCEPTS AND RECOMMENDED LAND AND WATER USE CONFIGURATION FOR NORTH EMBARCADERO SUB-DISTRICT
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EXECUTIVE SUMMARY:
Since 2013, the District has been evolving and improving a process, which we have come to know as Integrated Planning. In short, Integrated Planning is a multi-faceted and comprehensive approach for managing and planning the uses of the District in a balanced way. Although Integrated Planning is an approach and philosophy that will permeate numerous plans and processes at the District, one critical and current focus area is an update to the District’s Port Master Plan. The first comprehensive revision in the District’s history, the Port Master Plan Update (PMPU) is a comprehensive, integrated, baywide approach that will modernize our method for land and water planning and serve as a guide for future uses and development of District tidelands. The PMPU will connect the tidelands through a series of networks and Planning Districts. It will control the allowable land and water uses, including the type and characteristics of development, recreation, and environmental conservation throughout the District’s jurisdiction.
Through the course of 2017 and 2018, the Board conducted a series of workshops focusing on goals, policy concepts and draft land and water use maps for the baywide elements and the ten Planning Districts. Several policy topics have required additional discussion and feedback to assist the team with completing the Discussion Draft of the PMPU.
At the December 18, 2018 PMPU Board Workshop, staff received direction to increase team resources to conduct additional public outreach and to complete the PMPU Discussion Draft under an accelerated schedule. Specific to the Embarcadero Planning District, this public engagement plan will ensure that input from the public and stakeholders has been heard and will be considered as the team forms recommendations for the Board’s consideration.
This item is the second PMPU Board Workshop of 2019 and is focused on the North Embarcadero sub-district of the Embarcadero Planning District (Planning District 3). On February 12, 2019, staff presented the results of the Embarcadero public outreach that focused on the North Embarcadero and Central Embarcadero sub-districts, including the online survey and public open house event, for the Board’s feedback. In addition, follow up items regarding draft policy concepts specific to commercial fishing were presented at the February 12, 2019 workshop.
This February 25, 2019 PMPU Board Workshop will focus on staff’s recommendations for a preferred land and water use configuration for the North Embarcadero sub-district, including refined draft policy concepts specific to the sub-district, along with a summary of commitments for the area and an overview of past and current studies and concepts for the North Embarcadero area, and proposed public and stakeholder outreach through the Discussion Draft. This workshop will also include two of the four follow-up items from the February 12, 2019 workshop: (1) a summary of all past public and stakeholder outreach since the start of the Integrated Planning process in 2013; and (2) cost estimates to maintain the two existing Grape Street commercial fishing piers and to enhance or expand those piers. Two additional follow-up items from the February 12, 2019 workshop - the potential conversion of commercial fishing berthing water area near the G Street Mole to sportfishing berthing, and commercial fishing uses related to the Shelter Island Planning District - are anticipated to be discussed at the subsequent Board PMPU Workshop, which is anticipated to be scheduled for mid-March 2019.
Staff will follow the discussion structure utilized during the prior PMPU Board Workshops and a facilitator agenda has been included as Attachment A to provide estimated timeframes for each topic. Note, however, that the times are approximate and subject to change depending on the amount of public comment and length of Board discussion for each topic. This approach will allow the Board to receive staff’s presentations, hear from the public and stakeholders, and provide feedback to staff as the drafting of the PMPU continues. Staff’s preliminary draft presentation is included as Attachment B to provide the Board and the public time to review the discussion materials in advance.
RECOMMENDATION:
Recommendation
Receive staff’s presentation and provide direction on the Port Master Plan Update regarding the following topics:
A) Follow-up items from the February 12, 2019 PMPU Board Workshop
B) Planning commitments and previous studies for the North Embarcadero sub-district
C) Draft policy concepts and recommended land and water use configuration for the North Embarcadero sub-district
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FISCAL IMPACT:
Funds for work associated with the Port Master Plan Update effort are budgeted in the Planning Department’s FY 2019 budget within the Professional Services expense account (#620100).
Compass Strategic Goals:
This agenda item supports the Strategic Goals adopted by the Board. The Integrated Planning efforts, including the PMPU, will bring the District’s current practices into conformance with best management practices with considerations of sustainable fiscal growth for the District while proactively enhancing assets on tidelands and benefits to the public.
This agenda item supports the following Strategic Goals.
• A Port that the public understands and trusts.
• A thriving and modern maritime seaport.
• A vibrant waterfront destination where residents and visitors converge.
• A Port with a healthy and sustainable bay and its environment.
• A Port with a comprehensive vision for Port land and water uses integrated to regional plans.
• A Port that is a safe place to visit, work and play.
• A financially sustainable Port that drives job creation and regional economic vitality.
DISCUSSION:
PMPU Background
Holistic Planning Through Public Engagement
The PMPU process is in the third phase of a five-phase work plan. The five-phased work plan began with laying the foundation of the PMPU with acceptance of the Integrated Planning Vision Statement and Guiding Principles in the first phase, followed by acceptance of the Integrated Planning Framework in the second phase (collectively referred to as the “Integrated Planning Vision”). The phased work plan has allowed the PMPU team to continue to build a comprehensive update to the Port Master Plan from the ground up in a transparent and inclusive way that has included a balance of Board, stakeholder and public engagement throughout the planning process.
The summary below shows the five major phases of the work plan:
• Vision Process: Guiding Principles (Completed). The initial phase included a high-level assessment of District-wide assets and extensive public engagement resulting in a foundational Vision Statement and Guiding Principles for the entire Integrated Planning framework.
• Framework Report (Completed). The Vision Process was further refined through consideration of a core set of comprehensive ideas, memorialized in a Framework Report, that is informing the development of the Draft PMPU document.
• Draft the Port Master Plan Update. The current phase involves direction from the Board for drafting of the “Draft PMPU” document, which will ultimately be comprised of goals, policies and maps.
o Baywide Elements and Planning District Goals (Completed)
o Policy Concepts and Land and Water Use Maps (Completed)
o Additional Policy Discussion Topics (In Progress)
o Public review of PMPU Discussion Draft (Anticipated early 2019)
• California Environmental Quality Act (CEQA) Environmental Review (In Progress). Creation of the draft PMPU will be followed by conducting the requisite “CEQA Environmental Review.” Preliminary environmental review work has begun.
• California Coastal Commission Certification. If the Board certifies the Programmatic Environmental Impact Report (PEIR) and adopts the PMPU, it will be processed for “California Coastal Commission Certification,” with minor approvals thereafter, including the Board’s approval of the PMPU as certified by the California Coastal Commission (Coastal Commission) and lastly, the Coastal Commission’s approval of the final PMPU after the Board’s approval of the PMPU as certified by the Coastal Commission.
All these steps have or will require public input, stakeholder outreach, and agency coordination throughout.
Recap on the Draft PMPU Contents
As a refresher, the draft PMPU was initially proposed to include six topical sections, or elements, that provide baywide guidance related to Land and Water Use, Mobility, Coastal Access and Recreation, Natural Resources, Resiliency and Safety, and Economic Development. On November 1, 2018, staff received direction to add a seventh element dedicated to the topic of Environmental Justice. Within each element, there are goals and policies being drafted consistent with the proposed draft table of contents endorsed by the Board at the July 22, 2015 Integrated Planning Study Session. The elements will also contain and address cross-connecting themes like climate change and the Green Necklace. The PMPU team has utilized the robust public feedback obtained during the Integrated Planning process as the basis for drafting the goals and policy language to be contained within the draft PMPU elements.
The PMPU is also proposed to contain ten Planning Districts, and application of the baywide goals and policies established by the seven baywide elements will vary Planning District by Planning District, as appropriate. Each of the ten Planning Districts will contain more geographic-specific goals, policies, and land and water use maps intended to: 1) implement applicable baywide policies; 2) create development requirements tailored to the unique characteristics of each Planning District; and 3) implement the land and water use designations within those geographic areas. The draft policies for each Planning District will build on the corresponding goals and will be more granular in nature than the baywide element policies. The draft policies, both baywide- and Planning District-level will be available for the Board and public’s review during the Discussion Draft PMPU review period.
2017 PMPU Board Workshops
PMPU Baywide Elements and Planning District Goals: The first in a series of Board workshops on the draft PMPU was held on March 9, 2017. Workshop No. 1 focused on the proposed organizational structure of the updated Port Master Plan, the proposed consolidated land and water use designations, and the draft goals for the Land and Water Use Element.
Board Workshop No. 2 was held on April 27, 2017, and concentrated on draft goals for the Mobility Element, draft goals for the Economic Development Element, and draft goals and draft land and water use maps for the ten Planning Districts.
On May 25, 2017, during Workshop No. 3 draft goals for the Resiliency and Safety Element, draft goals for the Natural Resources Element, and draft goals for the Coastal Access and Recreation Element, were discussed. Staff also presented preliminary draft PMPU baywide recreation open space acreage allocations.
Staff received considerable feedback from the public, stakeholders, and Board during these workshops, which is being taken into account as the drafting of the PMPU continues. Notably, completion of these three workshops resulted in clear direction to staff on all the draft PMPU goals, which set the stage and context for the current policy discussions. Furthermore, as often mentioned during these workshops, drafting of PMPU materials discussed is iterative and the document will continue to be revised as staff receives public, stakeholder, and Board feedback.
PMPU Policy Concepts and Land and Water Use Maps: Based on the Integrated Planning Vision, including the Guiding Principles and Framework Report, and the draft PMPU Goals for the baywide elements and Planning Districts, staff presented draft policy concepts to illustrate strategies and priorities, as well as open space and development character, that may take the form of draft policy language to be contained within the PMPU.
Policy concepts for each of the baywide elements were presented to the Board at Workshops Nos. 4 and 5, on August 8, 2017 and November 14, 2017, respectively. In August, the Mobility, Economic Development, Resiliency and Safety, and Natural Resources elements were presented and discussed. The Land and Water Use and Coastal Access and Recreation elements were presented in November. Work on each baywide element and associated policy concepts have been used to inform preparation of policy concepts and maps for the Planning District components of the draft PMPU.
On November 14, 2017, the Board held a workshop focusing on the Coronado Bayfront, Silver Strand, Imperial Beach Oceanfront and South Bay Planning Districts. The National City Bayfront and Working Waterfront Planning Districts, as well as the Chula Vista Bayfront, Harbor Island and Shelter Island Planning Districts, were discussed during workshops held on December 5, 2017 (Workshop No. 6) and December 12, 2017 (Workshop No. 7), respectively. During those workshops, the Board heard feedback from the public and stakeholders regarding issues specific to each of these areas and provided guidance to staff for drafting of the PMPU policies and land and water use maps.
PMPU Policy Discussion Topics for 2018
Continuing the work on the planning districts into 2018, Workshop No. 8 was held on March 28, 2018 to focus on policy concepts and the land and water use map for the Embarcadero Planning District. As part of this discussion, it was noted that additional workshops with the Board would be necessary to address several complex issues related to the Embarcadero, such as a comprehensive analysis of public spaces along this waterfront, incorporation of mobility and access solutions, and follow up regarding commercial fishing-related policies.
Through the course of the 2017 and 2018 PMPU workshops focusing on baywide and planning district policy concepts, several policy topics were noted as needing additional discussion and feedback to assist the team with completing the Discussion Draft of the PMPU. The first of these discussions was held at the July 17, 2018 Board meeting (Workshop No. 9), during which staff received clear direction with respect to the PMPU regarding small format informational and wayfinding signage, including digital integration and paid advertising. On August 14, 2018, it was determined that many policy topics previously anticipated for Board discussion were no longer necessary, because either sufficient Board direction had been received or policy guidance from other state agencies had prescribed the approach staff will take. Finally, during Workshop No. 10, on November 1, 2018, staff received direction to add a seventh PMPU element focused on Environmental Justice.
Work Plan to Complete the PMPU Discussion Draft
At the December 18, 2018 PMPU Board Workshop, staff received direction to increase team resources to conduct additional public outreach and to complete the PMPU Discussion Draft under an accelerated schedule.
Embarcadero Planning District
Considered the front porch of San Diego, the Embarcadero is a vibrant Planning District with broad recreational and access opportunities on the waterfront that also provide economic value for the region and the tourism industry. This area provides a waterfront experience that combines visitor- and maritime-serving uses with working waterfront and water-side activities of commercial fishing boats, cruise ships, and pleasure craft.
At the April 27, 2017 PMPU Workshop, the Board established the following draft Goals for this Planning District:
• A “front door” to San Diego for travelers arriving by sea, land, or air, offering a vibrant mix of visitor-serving commercial and recreational activities, and internationally-recognized attractions that showcase and celebrate the history of San Diego’s waterfront
• Celebrated water areas that support historic ship, ferry and excursion vessel, recreational vessel, and commercial fishing berthing, and that preserve deep-water dependent cruise ship berthing
• An active experience that provides people meaningful waterfront gathering places and access to a broad mix of land and water-based entertainment, recreation, hospitality, and visitor destinations
The Embarcadero Planning District includes three sub-districts: North Embarcadero, Central Embarcadero, and South Embarcadero.
During the March 28, 2018 PMPU Board Workshop discussion, staff presented an overview of planning elements/commitments for the North Embarcadero that reflect requirements of the Coastal Commission-issued Coastal Development Permit and Memorandum of Understanding with the San Diego Navy Broadway Complex Coalition and Lane Field San Diego Developers for the North Embarcadero Visionary Plan. In addition, Board feedback was provided on draft policy concepts for the Embarcadero Planning District, as well as on policy concepts related to commercial fishing. It was noted that additional workshops with the Board would be necessary, including this one, to address several complex issues related to the Embarcadero, such as a comprehensive analysis of public spaces along this waterfront, incorporation of mobility and access solutions, and follow-up regarding commercial fishing-related policies.
Recap of February 12, 2019 PMPU Board Workshop on Embarcadero Planning District
At the February 12, 2019 PMPU Board Workshop, staff presented the results of our most recent Embarcadero Planning District public outreach and draft policy concepts related to commercial fishing. Our latest public outreach and stakeholder engagement on the Embarcadero Planning District public outreach occurred between December 2018 and January 2019, and will continue as necessary through the release of the Discussion Draft. This public and stakeholder input has informed the recommended land and water use configuration and draft policy concepts presented at today’s PMPU Board Workshop. Related to commercial fishing, at the February 12, 2019 PMPU Board Workshop, staff sought feedback on the acreage of land and water areas designated for commercial fishing. Staff will use this feedback as it works to complete the Discussion Draft.
Also at the February 12, 2019 PMPU Board Workshop, it was noted that some items required additional discussion to resolve concerns raised by stakeholders and that a follow-up discussion with the Board would be necessary. More specifically, the Board directed staff to bring four items from that workshop to a future Board PMPU workshop: (1) a summary of all previous public and stakeholder outreach since the start of the Integrated Planning process in 2013; (2) cost estimates to maintain the two existing Grape Street commercial fishing piers and to enhance or expand those piers; (3) the potential conversion of commercial fishing berthing water area near the G Street Mole to sportfishing berthing or other designation; and (4) commercial fishing uses, including the application of secondary use types and ratio limitations previously discussed in the Shelter Island Planning District. The first two items will be discussed at the February 25, 2019 Board PMPU workshop, and the latter two items are anticipated to be discussed at the next Board PMPU Workshop, which is anticipated to be scheduled for mid-March 2019. The two follow-up items to be discussed at the February 25, 2019 Board PMPU workshop are summarized below.
A) FOLLOW-UP ITEMS FROM THE FEBRUARY 12, 2019 BOARD PMPU WORKSHOP
Follow-up Item #1: Past Public Outreach and Stakeholder Engagement
The importance of public outreach and stakeholder engagement has consistently been emphasized as an essential component of the Integrated Planning effort to ensure the PMPU reflects the needs and desires of visitors to the waterfront and the community. Continuing the award-winning1 outreach and engagement approach for Integrated Planning, staff conducted additional public outreach focusing on the Embarcadero Planning District as presented to the Board at the February 12, 2019 PMPU Workshop. The public outreach has included meetings with the general public in the form of open house events and online surveys. At a minimum, every public outreach event has been advertised on the District’s webpage and social media, as well as emails sent directly to interested parties that have signed up on the District’s Integrated Planning mailing list. Stakeholder engagement has been in the form of land and water tours, meetings and charettes, and has reached federal, state and local agencies, special districts, and interested parties. As summarized in Attachment C, the public outreach and stakeholder engagement has been robust and comprehensive. Since the start of the Integrated Planning process in 2013, the PMPU team has had 34 Board Meetings and Workshops, 13 public events (e.g., open houses, community meetings, stakeholder gatherings), and 255 stakeholder meetings or presentations (e.g., meetings that are one-on-one, with stakeholder groups, and with organizations and agencies). The District has invested more than six years into public and stakeholder outreach as a part of the Integrated Planning process, and there is over 20 years of North Embarcadero-related outreach focused on achieving a shared vision for this stretch of waterfront.
Follow-up Item #2: Grape Street Commercial Fishing Piers
At the February 12, 2019 PMPU Board Workshop, staff also presented an opportunity to more accurately reflect the existing Embarcadero commercial fishing uses at the Grape Street piers, and to potentially further expand those existing uses, as part of the PMPU process. Commercial fishing uses are currently and have historically been located at the two Grape Street piers, but the existing Port Master Plan identifies the area as being designated with a “specialized berthing” water use. The two piers are the same size and configuration - a length of 550 feet, a width of 20 feet for the first 440 feet of the piers, and a width of 30 feet for the last 110 feet (the westernmost part of the piers) of the piers. As part of the PMPU, staff recommends the two Grape Street piers, which together total 0.56 acre be assigned a commercial fishing land use designation. This would result in a 0.56-acre reduction in the specialized berthing water use designation, which is the current water use designation assigned to the location of the two Grape Street piers. The potential acreage gain from the two Grape Street piers is shown below on Table 1 as OPTION 1. Figure 1 of Attachment D to this agenda sheet shows the location of the potential 0.56-acre acreage gain from the two existing Grape Street commercial fishing piers.
In addition, as presented at the February 12, 2019 PMPU Board Workshop, there may be a potential future opportunity to enhance or expand those Grape Street piers by 0.2 acre by widening the 20-foot-wide portions of the piers to be 30 feet wide so that they are the same width for the entire length of the piers. This would result in an additional 0.2 acre of commercial fishing land acreage above the 0.56-acre existing acreage on the two Grape Street piers. This potential additional acreage, resulting in a total of 4.75 acres of designated commercial fishing land area, is shown on Figure 2 of Attachment D to this agenda sheet, and is shown below on Table 1 as OPTION 2.
Before providing direction to staff on OPTION 1 or OPTION 2, the Board directed staff to provide cost estimates associated with each option. Estimates are included below.
Estimated Costs Associated with OPTION 1 - Maintain Existing Grape Street Commercial Fishing Piers
In FY2017, the Engineering-Construction Department prepared 90% construction documents to rehabilitate the two existing Grape Street commercial fishing piers. At that time the construction costs were estimated between $2.5M-$3.4M; however taking into consideration cost escalation, a contingency, and soft costs, the cost associated with OPTION 1 is estimated to be between $3.7M-$5.1M by FY2020. Table 1 of Attachment D to this agenda sheet provides a more detailed cost breakdown of this cost estimate, including consideration of soft costs (e.g., design completion and construction support) and cost escalation to FY2020.
Estimated Costs Associated with OPTION 2 - Enhance and Expand Grape Street Commercial Fishing Piers
The Engineering-Construction Department estimates that to enhance and expand the Grape Street commercial fishing piers could cost between $24M-$31M. This cost estimate is based on removal of the two existing wooden piers and replacing them with two new 30-foot-wide concrete piers. Costs to address seismic code requirements and stormwater mitigation regulations are included in this cost estimate.
In the event the Board directs staff to not include either option for the Grape Street piers in the PMPU, staff will seek additional Board direction to coordinate with the 1HWY1 team to incorporate additional commercial fishing designated land areas into the redevelopment plans for the Central Embarcadero.
B) PLANNING COMMITMENTS AND PREVIOUS STUDIES FOR NORTH EMBARCADERO SUB-DISTRICT
The purpose of this section of the workshop is to ensure the Board understands the history and status of North Embarcadero commitments and are familiar with the collection of North Embarcadero previous studies/concepts and common themes. Each are detailed below, with further details in Attachment E.
North Embarcadero Commitments
The North Embarcadero sub-district is the subject of several past commitments the District has with the Coastal Commission or private parties. The commitments are included in the following documents: the existing certified Port Master Plan; the existing lease and Coastal Development Permit (CDP) for the USS Midway Museum; the Memorandum of Understanding between the District, the San Diego Navy Broadway Complex Coalition, and Lane Field San Diego Developers; the North Embarcadero Visionary Plan Phase 1 CDP; and the Notice of Intent to Issue Permit (CDP) for interim parking on Navy Pier. These commitments, including the entities involved in the commitments and other notes regarding the fulfillment of the commitments are summarized in Attachment E.
North Embarcadero - Previous Studies/Concepts and Common Themes
As San Diego’s front porch, the North Embarcadero has been the topic of much discussion and study for over 20 years, beginning with the 1998 North Embarcadero Alliance Visionary Plan. More specifically, there has been 20 previous studies and/or concepts focusing on potential layouts for public space in the North Embarcadero:
o North Embarcadero Alliance Visionary Plan, 1998
o EEK Schematic Design Plan, 2005
o CAC Summary Report (7 Alternatives), 2011
§ Figure B (Alternative 1)
§ Figure C (Alternative 2)
§ Figure D (Alternative 3)
§ Figure E (Alternative 4)
§ Figure F (Alternative 5)
§ Figure G (Alternative 6)
§ Figure H (Alternative 7)
o Baucentrum Plan, 2012
o Jim Frost Plan (Unified Harbor Drive), 2014
o North Embarcadero Next (“NExt”) (9 Configurations), 2017
§ 74’ Roadway Section w/ 150’ Setback Park Study
§ 74’ Roadway Section w/ 205’ Setback Park Study
§ 53’ Roadway Section w/ 205’ Setback Park Study to West of Realigned Harbor Drive
§ 53’ Roadway Section w/ South Waterfront Destination Park
§ 53’ Roadway Section
§ 44’ Roadway Section w/ North Waterfront Destination Park & 150’ Setback Park Study
§ 44’ Roadway Section w/ North Waterfront Destination Park
§ 53’ Harbor Drive Roadway w/ a 205’ Setback Park Study to the East
§ 44’ Harbor Drive Roadway w/ a North Waterfront Destination Park
There were several common themes between these previous North Embarcadero studies/concepts, which were generally were related to the following topics: (1) the configuration of Harbor Drive; (2) parking; (3) tenant access/service; (4) the configuration of esplanade and promenade; and (5) the disposition of piers. These common themes and more details of each of the previous studies/concepts is provided in Attachment F to this agenda sheet.
The planning commitments and previous studies/concepts for the North Embarcadero were comprehensively reviewed and were important data points that assisted in forming the recommended land and water use configuration and draft policy concepts discussed in Section C below.
C) DRAFT POLICY CONCEPTS AND RECOMMENDED LAND AND WATER USE CONFIGURATION FOR NORTH EMBARCADERO SUB-DISTRICT
At the March 28, 2018 Board PMPU Workshop, staff presented the following draft policy concepts focused on the North Embarcadero:
• Provide Visual Access: Declare the Window to the Bay
• Enhance the Character of North Embarcadero: Plan for an increase in Visitor-Serving Recreational Commercial uses
• Integrate Mobility Uses on Walkways: Implement pedestrian and bicycle safety measures.
• Implement Green Necklace: Require continuous shoreline public walkways
• Activate Recreation Open Space: Locate walkways and amenity zones adjacent to the water; Activate Recreation Open Space with visitor-serving nodes and linkages; Pavilions and nodes should be located in direct proximity to existing visitor services; Clusters of up to three pavilions or nodes should be allowed within a ¼ mile of one another.
• Proactively Manage Recreation Open Space: Encourage temporary “pop-up” activities and experimental programming.
• Streamlined and Flexible: Update land use designations on B Street Pier and Broadway Pier.
With consideration of past Board direction, including feedback on the above draft policy concepts, as well as the commitments, public outreach, past studies and concepts for the North Embarcadero, and the District’s more recent North Harbor Drive Mobility and Access Study, which was presented to the Board at the December 18, 2018 PMPU Board Workshop, staff has completed a holistic review of the public realm, including both public space and mobility concepts. This comprehensive review, including consideration of the public input received earlier this year, have led to a recommended future vision for North Embarcadero that deemphasizes cars and emphasizes pedestrian connectivity through a series of diverse public spaces. This vision would extend the waterfront user experience, drawing the public to extend their time on the waterfront. For purposes of the PMPU, this vision is supported through draft policy concepts and the recommended land and water use configuration as presented in staff’s preliminary draft of the workshop presentation (see Attachment B to this agenda sheet). Please note that these draft policy concepts are in addition to the draft policy concepts that were presented at the March 28, 2018 Board PMPU Workshop.
Implementation of the recommended land and water use configuration and draft policy concepts for the North Embarcadero would satisfy the North Embarcadero commitments; however, it is strongly recommended that the land and water use configuration be phased-in, as it may be infeasible to implement them immediately or at one time. More specifically, the recommended land and water use configuration could be implemented through a series of steps or sequences. As part of the presentation at the February 25, 2019 Board PMPU Workshop, staff will walk through one example of how the sequencing could occur, as well as draft policy concepts that would assist in this sequencing. Integral to this implementation phasing are policies related to mobility hubs and parking; draft policy concepts related on these topics are included in staff’s preliminary draft presentation (Attachment B to this agenda sheet). At a high level, this implementation would consist of sequences that are related to the relocation of parking, followed by the creation of public space. For example, once mobility hubs are constructed, Harbor Drive can be re-configured, and the public space in the North Embarcadero can be enhanced and expanded. Re-imagining Harbor Drive with reduced widths and enhanced transit opportunities allows for the creation of the “next great waterfront street” more suitable to the recreational and visitor-serving character of the Embarcadero, that when coupled with a visionary expansion of public spaces and amenities along the waterfront, give the North Embarcadero the potential to draw world-wide recognition.
The recommended land and water use configuration and draft policy concepts underwent independent peer review by landscape architect Marty Poirier, who has extensive knowledge of the North Embarcadero, including past planning efforts. In addition to providing feedback that informed the recommended land and water use configuration and draft policy concepts, Mr. Poirier provided high-level comments which are included as Attachment G to this agenda sheet.
Next Steps
The next Board PMPU Workshop, which is anticipated to occur in mid-March 2019, will focus on the two additional follow-up items from the February 12, 2019 Board PMPU Workshop - the potential conversion of commercial fishing berthing water area near the G Street Mole to sportfishing berthing, and commercial fishing uses, including the application of secondary use types and ratio limitations previously discussed in the Shelter Island Planning District. In addition to these follow-up items, refined policy concepts specific to the Central Embarcadero sub-district will be presented as part of this workshop discussion.
Looking ahead, our commitment to robust public engagement will continue, but there will be a noticeable pivot as our outreach transitions from a focus on vision, goals and policy concepts to more substantive content related to the Discussion Draft. The District purposefully built public review of a Discussion Draft into the PMPU schedule to encourage public participation as we continue to develop the PMPU. As a part of the upcoming Discussion Draft public review period, the following types of public engagement will be included, as additional ways to embrace public input:
• Board workshops
• Public open house events
• Interactive discussion sessions
• Stakeholder meetings
This future public engagement is further described below.
PMPU Discussion Draft
After the completion of the next Board PMPU Workshop the team is anticipating the following steps for completion of the PMPU Discussion Draft:
• Board Workshop (April 2019). Prior to launching the public review period for the PMPU Discussion Draft, staff will present the Board with an overview of the document and confirm direction to kick-off the public review period. In keeping with the transparent and proactive approach to planning consistently taken throughout the Integrated Planning process, the Discussion Draft PMPU will be made available to provide the Board and the public an opportunity to review the entire draft PMPU document, including the introduction, element goals and policies, and Planning Districts, in a holistic manner. This workshop is anticipated to be scheduled for early April.
• Public Open House Events (April 2019). Following the Board’s workshop on the Discussion Draft, two public open house events will be held to allow for members of the general public to ask questions and interact with the PMPU team regarding the content of the PMPU Discussion Draft. These events will take place in April with one to be located at the Port Administration building and the other in the South Bay.
• Stakeholder Meetings (March-May 2019). Ongoing one-on-one and/or group meetings with stakeholders and agencies to address specific issue areas will continue as necessary through the completion of the Discussion Draft review period.
• Interactive Discussion Sessions (April-May/June 2019). Interactive discussion sessions with key agencies, including Coastal Commission staff, and community and professional organizations. This is anticipated to occur during public review of the Discussion Draft.
• Board Workshop (May/June 2019). Once the review period has concluded, the written comments received on the Discussion Draft will be transmitted to the Board and reviewed by the PMPU team. Public comments and Board feedback on the Discussion Draft may result in revisions to the Draft PMPU. Depending on the number and complexity of the comments received, it is anticipated that a workshop with the Board will be scheduled in May or June to present the updated Draft PMPU and obtain direction to use it as the project description for the Draft Programmatic EIR for the PMPU.
CEQA and Coastal Commission Processing
As a part of the environmental review process, it is anticipated the Draft Programmatic EIR will be circulated for public review by the end of 2019 with the Board’s targeted consideration of the certification of the Final Programmatic EIR and approval of the PMPU in Spring of 2020. Processing of the PMPU with the California Coastal Commission is expected to take place through the remainder of 2020. As depicted in Attachment H, these anticipated milestones are dependent upon the direction received by the Board and the volume and complexity of comments received; therefore, the timeline may require adjustment as the PMPU process progresses.
General Counsel’s Comments:
The General Counsel’s Office has reviewed the agenda sheet and attachments as presented to it and approves them as to form and legality.
Environmental Review:
This item provides a presentation on the recommended land and water use configuration for the North Embarcadero, as well as draft policy concepts specific to this sub-district. This presentation is informational in nature and is intended to give staff initial and preliminary feedback on the topic being presented. The item and any Board feedback do not constitute an “approval” or a “project” under the definitions set forth in CEQA Guidelines Sections 15352 and 15378 because no direct or indirect changes to the physical environment would occur. While the Board may request certain policy concepts, uses and other project components be included, alternatives studied or other direction, such direction to staff will not bind the District to a definite course of action prior to CEQA review. Additionally, Board endorsement of the recommended land and water use plan and policy concepts presented does not constitute a binding commitment to approve the PMPU or its contents prior to consideration of the PEIR. These components may be altered through the public engagement process, future Board feedback, and the CEQA process. Full CEQA analysis will be completed prior to the District’s commitment to the PMPU of components thereof, in whole or in part. Moreover, the Board reserves its discretion to adopt any and all feasible mitigation measures, alternatives to the PMPU, including a no project alternative, a statement of overriding consideration, if applicable, and approve or disapprove the PMPU. Those decisions may be exercised in the sole and absolute discretion of the Board. Based on the totality of the circumstances and the entire record, the Board’s direction and action do not commit the District to a definite course of action prior to CEQA review being conducted. Therefore, no further CEQA review is required.
In addition, this informational report allows for the District to implement its obligations under the Port Act and/or other laws. The Port Act was enacted by the California Legislature and is consistent with the Public Trust Doctrine. Consequently, this informational report is consistent with the Public Trust Doctrine.
Finally, this informational report to the Board does not allow for “development,” as defined in Section 30106 of the Coastal Act, or “new development,” pursuant to Section 1.a. of the District’s Coastal Development Permit (CDP) Regulations because it will not result in, without limitation, a physical change, change in use or increase the intensity of uses. Therefore, issuance of a CDP or exclusion is not required. However, the District’s projects require processing under the District’s CDP Regulations. If a project is formulated as a result of the informational report, the Board will consider approval of the project and any improvements associated after the appropriate documentation under District’s CDP Regulations has been completed and authorized by the Board, if necessary. The Board’s direction in no way limits the exercise of the District’s discretion under the District’s CDP Regulations.
Equal Opportunity Program:
Not applicable.
PREPARED BY:
Lesley M. Nishihira
Director, Planning
Anna Buzaitis
Program Manager, Planning
Attachments:
Attachment A: Facilitator Agenda
Attachment B: Preliminary Draft Staff Presentation for February 25, 2019 Board Meeting Agenda File No. 2019-0074
Attachment C: Summary of Past Public Outreach and Stakeholder Engagement
Attachment D: Grape Street Commercial Fishing Piers - Estimated Costs to Repair Existing Piers and Potentially Enhance and Expand
Attachment E: Existing Commitments in North Embarcadero Sub-District
Attachment F: Summary Report of Previous Planning Studies/Concepts for North Embarcadero Sub-District
Attachment G: Independent Peer Review Letter from Marty Poirier, dated February 20, 2019
Attachment H: Port Master Plan Update Public Outreach Timeline and Drafting Process
1Recent awards for the Integrated Planning initiative include:
• -2018 Gold International MarCom Award, PMPU Public Outreach & Engagement (Category: Strategic Communications, Communications/Public Relations Communications Program) Association of Marketing and Communications Professional <https://enter.marcomawards.com/winners/>s
• 2018 Award of Excellence - Community Education/Outreach (Port Master Plan Update), American Association of Port Authorities (AAPA <https://port.informz.net/informzdataservice/onlineversion/ind/bWFpbGluZ2luc3RhbmNlaWQ9NzY4MzEyOSZzdWJzY3JpYmVyaWQ9MTA1OTgyMjYyNQ>)
• 2018 (CAPIO) Excellence in Public Information and Communications (EPIC) Awar <https://www.portofsandiego.org/press-releases/general-press-releases/port-san-diego-honored-california-association-public>d
• 2017 Silver Bernays Award of Excellence for Community Relation <https://www.portofsandiego.org/press-releases/general-press-releases/port-san-diegos-integrated-planning-vision-wins-2017-silver>s
• 2017 National Environmental Excellence Award, National Association of Environmental Professional <http://www.naep.org/eea2017homepage>s
• 2016 National Planning Excellence Award for a Planning Advocate (Commissioner Ann Moore), American Planning Associatio <https://www.planning.org/newsreleases/2016/mar30-f/>n
• -2016 Silver Bernays Award of Excellence Public Affairs (Cook and Schmid), Public Relations Society of Americ <http://prsasdic.org/news/prsa-chapter-honors-2016-edward-l-bernays-award-winners>a
• ’2016 Presidents Award (HKS Urban Design Studio/Randy Morton), American Institute of Architects San Dieg <http://www.aiasandiego.org/2016-design-award-recipients>o